fl4 



jYersity ol the State ol New York Bnlletin 

Entered as second-class matter August a, 1913, at the Post OfSce at Albany, N. T., under the ] 

act of August 34, igi2 

Published fortnightly 



ALBANY, N. Y. 



October i, 1918 



Attendance Division 

James D, Sullivan, Chief 



CENSUS, CHILD WELFARE AND COMPULSORY 
EDUCATION BUREAUS 

ESTABLISHED 1917 



ALBANY 

THE UNIVERSITY OF THE STATE OF NEW YORK 
1918 



Ci8r-Ni8-5000 (7-755) 



-||tlH«'' 



THE UNIVERSITY OF THE STATE OF NEW YORK 

Regents of the University 
With years when terms expire 

1926 Pliny T. Sexton LL.B. LL.D/ Chancellor - Palmyra 

1927 Albert Vander Veer M.D. M.A. Ph.D. LL.D. 

Vice Chancellor Albany 

1922 Chester S. Lord M.A. LL.D. ----- Brooklyn 
1930 William Nottingham M.A. Ph.D. LL.D. - Syracuse 
192 1 Francis M. Carpenter - ----- - Mount Kisco 

1923 Abram I. Elkus LL.B. D.C.L. LL.D. - - - New York 

1924 Adelbert Moot LL.D. ------- Buffalo 

1925 Charles B. Alexander M.A. LL.B. LL.D. 

Litt.D. ----------- Tuxedo 

1919 John Moore LL.D. -------- Elmira 

1928 Walter Guest Kellogg B.A. LL.D - - - Ogdensburg 

1920 James Byrne B.A. LL.B. LL.D. - - - - New York 

1929 Herbert L. Bridgman M.A. ----- Brooklyn 

President of the University and Commissioner of Education 

John H. Finley M.A. LL.D. L.H.D. 

Deputy Commissioner and Assistant Commissioner for Elementary Education 

Thomas E. Finegan M.A. Pd.D. LL.D. 

Assistant Commissioner and Director of Professional Education 

Augustus S. Downing M.A. L.H.D. LL.D. 

Assistant Commissioner for Secondary Education 

Charles F. Wheelock B.S. LL.D. 

Director of State Library 

James I. Wyer, Jr, M.L.S. 

Director of Science and State Museum 

John M. Clarke, D.Sc. LL.D. 

Chiefs and Directors of Divisions 

Administration, Hiram C. Case 

Agricultural and Industrial Education, Lewis A. Wilson 

Archives and History, James Sullivan M.A. Ph.D. 

Attendance, James D. Sullivan 

Educational Extension, William R. Watson B.S. 

Examinations and Inspections, George M. Wiley M.A. 

Law, Frank B. Gilbert B.A., Counsel 

Library School, Frank K. Walter M.A. M.L.S. 

School Buildings and Grounds, Frank H. Wood M.A. 

School Libraries, Sherman Williams Pd.D. 

Visual Instruction, Alfred W. Abrams Ph.B. 



. ^ ^^^'^!;^- 



DniYersity ol "the State ol New York Bulletin 

Entered as second-class matter August 2, 1913, at the Post Office at Albany, N. Y., 
under the act of August 34, 1913 

Published fortnightly 
No. 672 ALBANY, N. Y. October i, 191 8 



CENSUS, CHILD WELFARE AND COMPULSORY 
EDUCATION BUREAUS 

PERMANENT CENSUS BUREAUS ESTABLISHED, 1917 

The Legislature of 191 7, under an amendment to the census law 
of 1908, provided that each city of the second and third class should 
take a census of all persons above 4 and under 18 years of age 
residing in each such city, and further that each of such cities should 
amend such census from day to day to the end that at all times 
there should be available in each city of the State up-to-date census 
information. , 

On September 17, 1917, the taking of the census was begun and 
prosecuted to a successful close in each of these cities. This was the 
initial step in the inauguration and establishment of permanent 
census bureaus in the fifty-five cities included within the scope of 
the act. The bureaus thus started are to be organized, maintained 
and administered along the lines of the bureaus established in cities 
of the first class under the act of 1908. 

The establishment of permanent census bureaus by legislative 
enactment in the fifty-eight cities of the State will come to be 
regarded, as the years pass, to have been an accomplishment of great 
moment along educational and child welfare lines. 

In 1895 the Legislature enacted the nucleus of our present com- 
pulsory education law, which in the intervening years has been 
suitably amended and much broadened in scope. In the same year 
the first census law relating to cities was enacted, as it was entirely 
apparent that the success of the compulsory education law would in 
no small degree depend upon available and accurate census informa- 
tion concerning all children within the scope of the attendance stat- 
ute. This census act of 1895 required each city having a population 
of 10,000 and over to take a census every two years of all persons 
above 4 and under 18 years of age. Such census was taken, how- 
ever, in only two biennial periods, it having been found that the work 
involved and the expense incident thereto was so great, as compared 

3 



with the meager benefits resulting, that school and municipal 
authorities were loath to continue taking a census biennially. Within 
a very short time after the biennial census had been taken within 
our cities, the information obtained ceased to be a safe and adequate 
guide for school authorities charged with the administration of the 
compulsory education law. Yet, all the time it was felt that there 
should be on hand in every municipality necessary census informa- 
tion to enable authorities properly to administer and execute attend- 
ance statutes. 

The Legislature of 1908 amended the census law by providing 
that a census should be taken in each city of the State, and that in 
each city of the first class the census board, composed of the mayor, 
commissioner of public safety and the city superintendent of 
schools, should cause the initial census to be amended from day to 
day, as persons within census age take up their residence in the city, 
and as others depart therefrom, and still again as others remove 
from one section to another section of the same city, so that in cities 
of the first class there shall be maintained at all times a permanent 
and up-to-date census bureau. The act further provided that the 
amending of the census from day to day in cities of the second and 
third class should be optional with the census board. 

The boards in the cities of the second and third class, however, 
failed to take advantage of the optional provisions of the act, prefer- 
ring to take a census quadrennially, as provided in the act, and as a 
result the census taken in the second and third class cities once in 
four years soon ceased to be of any substantial and continuous 
value to school authorities of said cities in the administration of 
child labor and compulsory education laws. In fact it was the testi- 
mony of the city superintendent of each city that the four-year 
census was even less serviceable than the biennial census, since both 
censuses signally failed to meet the purposes sought to be accom- 
plished in the census scheme. 

In the meantime, permanent census bureaus established in cities 
of the first class under the scheme of amending the census from day 
to day were found to be invaluable aids in a proper administration 
of child labor and compulsory education laws, as well as in child 
welfare work. 

It was not unusual to find, even in cities of the third class, that 
the compulsory education and child labor laws were seriously fail- 
ing adequately to accomplish the purposes for which the laws were 
enacted, solely for the want of up-to-date, reliable census informa- 

"•, Of ©. 

c». 25 1919 



tion, while in a city of the first class, having from 250,000 to 5,000,- 
000 population, the results attained in the administration of these 
laws were vastly in excess of the results attained in the smaller 
municipalities. The reason for this was ever and always in 
evidence, namely, that the up-to-date, reliable census information 
obtainable in the city of the first class enabled school authorities to 
administer attendance laws with a degree of steadiness and success 
not possibly attainable even in a small city, where such up-to-date 
information was lacking. 

When the census act of 1908, requiring authorities in cities of the 
first class to establish permanent census bureaus, went into effect, 
there was entertained honest doubt by many well-disposed citizens 
concerning the practicability and ultimate success of such census 
bureaus, and doubtless there are in our smaller cities persons, 
identified with school administration, who entertain similar doubts 
concerning the success of the present census law applicable to such 
smaller cities. We need, however, in this new undertaking in order 
to dispel all doubts only to examine briefly the history of permanent 
census bureaus in cities of the first class. These bureaus have been 
in the ten years of their history not only immensely valuable as a 
necessary means in the administration of child labor and attendance 
laws, but equally serviceable in a marked degree in child welfare 
and philanthropic work. The bureaus are veritable storehouses of 
necessary information concerning children ; they have acted as 
clearing houses for philanthropist, social worker, teacher — in fact 
every person disposed to do something or anything along social and 
philanthropic lines in child welfare work, particularly as regards 
that large group of children sorely in need of help on account of 
unfortunate home environments. 

Up to 1908, it is a notable fact that a permanent census bureau, 
similar to the bureaus now being maintained in the cities of our 
State, had never been established in any American municipality. 
The State of New York, therefore, did pioneer work in the estab- 
lishment of these bureaus. 

The late Dr A. S. Draper, State Commissioner of Education, was 
from the very date on which he entered the field of public education 
administration a pioneer, and with clear vision led the way in new 
and far-reaching educational movements, and let it be here recorded 
for the first time that to Doctor Draper is due the credit of having 
secured the enactment of the census law of 1908, under wh'ch 
permanent census bureaus were established in the cities of Roch- 



ester, Buffalo and New York. Now that similar bureaus have been 
tentatively established in all other cities of the State, the final and 
complete consummation of what Doctor Draper had in mind may be 
regarded as an assured fact under his worthy successor, Doctor 
Finley. It was Doctor Draper's thought and, in our interpretation 
?ind application of the present census law, we are putting into effect 
his thought, that permanent census bureaus should be " centralized 
clearing houses," where very full and complete information con- 
cerning each child could be obtained by any one interested in the 
betterment and uplift of children, since teachers and school authori- 
ties within a school system have had at the best only fragmentary 
information concerning each individual child of the great group of 
children within the system. 

In having mentioned Doctor Draper in this connection, we regard 
it as entirely proper and fitting that it be said that the Legislature of 
the State had commendable courage and clear foresight in having 
enacted .^irst a compulsory education law and the census law of 
1908, and as amended in 191 7, a law which when properly executed 
will prepare the way for a humane, intelligent and complete adminis- 
tration of the child labor and attendance statutes within a group of 
fifty-eight cities, having an aggregate population of above eight and 
one-fourth million people. 

CENSUS INFORMATION IN PREPARATION FOR 
MILITARY SERVICE 

An army of two million children is being trained in the schools 
of the State for economic industry, family and social life and intelli- 
gent citizenship in a democracy, and the State is annually expending 
over one hundred millions of dollars for such training ; and, further- 
more, private enterprise is expending an additional ten million dol- 
lars for the same worthy educational purposes. Yet a vast number 
of this great army of children fail to receive that education that is 
the birthright of every child in a free state, simply because the State 
has lacked essential and necessary information concerning the indi- 
vidual child. 

On our entrance into the world war, information concerning the 
man power of the State was equally lacking, and the same was 
true in other states, though no other country affected b}^ the world 
war is richer in available man power and material resources with 
which to make war than the United States. We have vast wealth 
in resources but, as to just where and in what shape, the Nation 



signally lacked definite and available information. In fact, had it 
not been for the information on file at the Federal Census Bureau at 
Washington, the Nation would have been tremendously handicapped. 
The federal bureau, though established as early as 1790, was not 
made into its present efficient organization until as late as 1902, 
because of the lack of proper governmental support. For many 
decades the encouragement afforded the bureau by the federal gov- 
ernment was exceedingly meager, as its work was but little appre- 
ciated by the great masses of our people; and, had the bureau not 
been firmly established in the constitution, presumably its operation, 
for want of popular favor, would have been discontinued long before 
we entered the war. 

Turning to the federal census reports, we find much information 
which was and is exceedingly valuable tO' the Government, concern- 
ing the country's mines, factories, workshops, farms, forests, rail- 
ways, telephone and telegraph, electric light and power systems, 
wealth, debt, education and illiteracy. When war was declared, the 
Government at Washington immediately needed estimates of popula- 
tion, the number of men 21 to 30 years of age, fit for military regis- 
tration, and this information was on file at the bureau as a result 
of the decennial survey of 1910. This information, of course, was 
not up to date. It was, nevertheless, exceedingly valuable and sug- 
gestive. The census bureau further furnished to the Government 
the residence of all who had enlisted in the army, navy and marine 
corps, and the occupation of such registrants, on the date of the 
last survey. The bureau further furnished valuable data concerning 
the materials for which information was sought. A list of ship- 
building establishments was furnished to the ship-building board, 
together with salaries of wage earners employed in such establish- 
ments. The kinds and quality of coal consumed by all great manu- 
facturing concerns was information worth the while. The federal 
bureau even at this writing is still rendering to the Government very 
great service. 

Six hundred clerks are permanently employed in the bureau ; and 
during the period of the decennial survey of 1910, 80,000 to 90,000 
employees were upon its pay roll. In peace times, no wonder the 
average taxpayer questioned the advisability of employing this vast 
army of men and women solely upon census work ; yet, when the 
Nation entered the war, and information was needed as to the 
man power of the country, and material resources, no thoughtful 
intelligent person begrudged the cost of maintaining the Federal 
Census Bureau — a veritable storehouse of necessary information. 



8 

Entrance into the war called for a vast amount of information 
in every state of the Union in addition to that available at the Wash- 
ington bureau. New York, as usual, was the pioneer state in taking 
an inventory of its own up-to-date man power. It was the hrst stale 
to take a military census. 

Repeatedly classified and verified lists of skilled workers in the 
various trades have been furnished the Government at Washington 
by the State of New York. The Government in December last 
wanted information from the State concerning the five most essen- 
tial trades auxiliary to shipbuilding and a list of 68,392 names and 
addresses was promptly sent to Washington. 

A prominent representative of the British Government in this 
country last winter wanted information as to the names and 
addresses of 1000 men who were British subjects within the State. 
The Military Commission instead of sending on 1000 names dis- 
patched 6500 names and later increased the number to 100,000. 

The New York Herald was in need of a list of enemy aliens 
within the State and the State Defense Council promply furnished 
the names and addresses of 150,000 aliens, all residing within the 
State. 

Again, the State of New York was asked for a list of cooks, 
bakers and butchers. A list of 1659 cooks, 1806 bakers and 1368 
butchers was furnished. 

In the spring of 1918, the Brooklyn Navy Yard requested from 
the council information concerning blacksmiths, painters, iron and 
steel metal workers, machinists, tailors and sailmakers, iron and 
steel workers, wood workers and coppersmiths, and the council 
promptly furnished a list of 200 blacksmiths, 600 painters, 500 iron 
and steel metal workers, 1000 machinists, 600 tailors and sail- 
makers, 1320 iron and steel workers, 1020 wood workers and 600 
coppersmiths. At the same time the New York State Patriotic Food 
Commission wanted a list of farmers, foremen, farm laborers, and 
the council was in a position to furnish the commission 7550 names 
and addresses. 

In fact, the military census of the State supplied to the Federal 
Government the names of 153,000 men who had certified as desir- 
ing to enlist in either the army or the guard. The military census 
has provided for the Federal Government accurate data conccrnin'^ 
every trade and every line of commerce and industrial activity, 
which is little else than a mine of information upon which the Gov- 
ernment has drawn, and we find that later the Government at Wash- 



ington endeavored to have other states follow the lead of New York 
in providing similar up-to-date information. 

Our reference here to the aid furnished by the Federal Census 
Bureau, and the census of the Military Commission, is for the 
immediate purpose of calling attention to the fact that our entrance 
into the great war has suddenly brought to the attention of the peo- 
ple of the State the absolute need of up-to-date census information 
concerning many important matters that were but little appreciated 
or considered in peace times. 

The information hurriedly obtained for the Federal Government 
by the State Military Commission, and much additional information 
concerning the people of the State and its manufacturing interests 
and material resources, we are justified in assuming will in the years 
to come be kept on file up to date, so that never again, even in peace 
times, will we be found wanting in the information that we so sorely 
lacked, when called upon to put our house in order in getting ready 
to do our part in the great war struggle. 

Census information within our cities and the State at large has 
heretofore been signally lacking, as already stated. Therefore the 
amendment of 191 7 to the census law is timely. Under this act the 
board of education of each city is created a permanent census board 
and " such board shall have power to make such rules and regula- 
tions as may be necessary to carry out the provisions of this article. 
Such board shall have power to appoint a secretary and such clerks 
and other employees as may be necessary to cany out the provisions 
of this article, and to fix the salaries of the same." The census 
board thus created is vested with ample statutory powers. Under 
the act the board may obtain all information which in its judgment 
may appear advisable and necessary, and the State Department of 
Education may " also obtain such further information as such 
authorities shall require." In fact, the amended act is amply suffi- 
cient to enable both the state authorities and local census boards to 
obtain full and accurate information concerning every person of 
census age as to his or her home environment, and the causes that 
may prevent such person — girl or boy — from having an adequate 
chance for real education. The act gives to local boards and the 
Commissioner of Education a free hand to do whatever is necessary 
to be done to protect every child within our municipalities in his right 
to a true American education. The child underfed, poorly clad, 
within the home of the intemperate, who spends his daily wage at 
the corner saloon, or whose mother may be seeking redress in the 



10 

divorce courts — even such a child, the unloved one, much of whose 
education is now of the blind alle}^ and street, may be saved under a 
judicious administration of these beneficent laws. 

A WORKABLE INTERPRETATION OF THE LAW 

The word " census " as usually interpreted only inadequately and 
rudimentarily expresses the meaning of the amended census act, 
yet in this narrow sense only have censuses been taken in former 
years in cities of the second and third class. 

A mere count of children within certain age groups, whether the 
city be large or small, is surely of some little value ; but to serve as 
an adequate basis for the daily administration of child labor and 
compulsory attendance statutes, the annual, biennial or quadrennial 
count was altogether inadequate, since within a very short period 
after the original survey had been made, census lines in the field had 
become so changed as to render initial data an unsafe guide in the 
operations of child labor and attendance statutes. While the new 
act provides for an accurate enumeration of the entire population 
within census ages, provision is also made for a continuous count 
as changes take place within age groups ; and the statute further pro- 
vides, as before stated, that the scope of information obtained, in 
addition to the count, may include whatever local authorities and 
the State may require. 

Information called for on the field census card formulated by the 
Department, and used in taking the city-wide census, may be 
regarded as a fair and reasonable interpretation of the law as regards 
necessary basic data. Briefly, the card called for name and residence 
by street and number of each person over 4 and under 18 years of 
age ; the date of birth, year, month and day of the month ; the name 
of the parent or one in parental relation ; the country in which both 
child and parent were born and the number of years of each in the 
United States ; physical condition of child, if child happens to be 
physically defective (crippled, deaf, dumb, blind, tubercular, physi- 
cally ill) ; mentally normal or defective, or mentally retarded, as the 
case may be; information concerning illiteracy and truancy ; working 
certificates; school attended (elementary, high or evening school) ; 
if child were employed, name and address of employer. A copy of 
this census card used in the city survey of the entire group of cities 
may be found elsewhere in this bulletin. 

The original city survey began September 17, 191 7, with full 
instructions from the Department as to detailed procedure, and by 



II 

the aid of competent enumerators who had been to some extent at 
least trained for the task in hand, the work was in an orderly, intelli- 
gent manner carried forward from day to day to its final completion ; 
and, on the whole, this particular census was more intelligently, 
completely and satisfactorily taken than any previous census in the 
history of the cities of the second and third class. Information 
secured by enumerators from day to day was turned in to the census 
bureau and there tabulated, classified and filed, and such data became 
the basic foundation of a permanent census, child welfare and com- 
pulsory education bureau in each city. 

During February 1918 each city superintendent was requested to 
file at the State Department of Education a summary report of 
information obtained in the original survey. As outlined upon the 
blank form on page 12. 



12 



THE UNIVERSITY OF THE STATE OF NEW YORK 

THE STATE DEPARTMENT OF EDUCATION 

CENSUS REPORT 



City of.. 

January , iqi8 

On what date was the initial city- wide census completed? 

Summary 









1 Number of persons over 4 and under 1 8 years of age . 

2 47. 

3 « 7 « 14 

4 « 14 « 16 

5 « 16 " 18 



Total. 



Boys 



Girls 



Total 



6 

[7 



'9 
10 
II 



13 



Total number under 4 years 

Total number over 14 and under 16 absent from school on 

working papers ...: -.-. 

Total nimiber of compulsory school age absent from school 

in violation of law at time initial census was taken 

Number of native born children over 4 and under 18 

Number of foreign born children over 4 and under 18.. 

Total number over 7 and under 18 unable to read and 

write English 

Total number over 10 and under 18 unable to read and 

write any language 

Number of children mentally incompetent : 

a idiot 

h mentally subnormal (not included in a) 

c mentally retarded (over aged for grade they are in).. 



Total 



14 Number of children physically ill: 

a cripple 

h deaf 

c dumb 

d blind.. 

e tubercular etc 



Total 



[Signature] 



Superintendent 



13 

The report received from each city is credited to the proper city 
in the table of grand totals appearing elsewhere in th's bulletin, and 
the table as a whole and in detail furnishes abundant data for inter- 
esting and profitable comparisons. Bearing in mind that all children 
between 7 and 16 years of age are required by the compulsory 
attendance act to be in regular attendance upon instruction, if not 
legally employed between 14 and 16, the number found absent from 
school in violation of law indicates the extent tO' which the law was 
not being enforced within each city during the period of survey. In 
five cities of the second class, 13 to each 100 children, between 14 
and 16, were absent from school on working papers, while 621 
required by law to attend were absent in violation of statute, and 
888 persons from 7 to 18 years of age were found to be unable to 
read or write English, while 126 persons 10 to 18 were found unable 
to read or write any language (illiterates). 

In view of the fact that there has been almost no immigration to 
this country since 1914, it seems almost unaccountable that there 
should have been found 888 person 7 to 18 years of age in these five 
cities unable to read and write English. As English is the prevail'ng 
language of the country, were the 888 persons attending schools in 
which the English language was not taught ? Were they attending 
German private schools, where only the German language was 
taught, or Polish schools where only the Polish language is taught ? 
The compulsory education law was certainly not being enforced so 
far as the 888 children were concerned, as that law specifically pro- 
vides that children of compulsory school age shall be instructed in 
English and from English texts, whether they attend a public school 
or private. Some of these children doubtless were between 16 and 
18 years of age, and thus not amenable to the compulsory education 
statute, but before they passed beyond the requirements of such 
statute, they ought surely to have had insruction in English. An ele- 
mentary school in which the English language is not taught, whether 
private or parochial, has no right to exist within the borders of the 
State or country. Every child has an inherent right to become 100 
per cent American, but he never will become such, and can not 
become such, without at least a knowledge of elementary English. 
Examining the table of the entire group of cities, we find that there 
were 1586 persons of census age who were unable to read and write 
English. These figures do not appeal to our pride, to say the least. 
In the years to come, as these 1586 persons shall become voters, they 
will doubtless be listed and exploited as German-Americans, Italian- 
Americans, Polish-Americans — hyphenated Americans — instead 



of real, simon-pure, lOO per cent Americans. A noted American 
writer has recently put into a very few words a statement that 
throws light upon the situation suggested by this non-English speak- 
ing group : "One must read in English in order to think in English, 
and one must think in English in order to be a real American:" 
From another distinguished American : " There is room in this 
country for but one language and that must be the language of the 
Declaration of Independence and Washington's Farezvcll Address 
and Lincoln's Gettysburg Speech — the English language." There 
were 191 5 persons, including non-English speaking and illiterates, 
between 7 and 18 years of age, within the group of cities covered 
by the survey, without any knowledge or understanding of English 
— the language in which the constitution and history of the nation 
are written — and these persons and all such are bound to be a 
menace to republican institutions, unless steps are taken to give 
them an understanding of at least elementary English. 

HOW SHALL THE CENSUS BE AMENDED FROM DAY 
TO DAY AS REQUIRED BY LAW? 

Success will attend the administration of the census law not 
beyond the limit to which the census is kept amended up to date. 
Proper and complete amendment is therefore vital. The necessary 
steps to be taken in the process of amendment are identical with the 
steps that were taken in securing the original city-wide survey. As 
new persons of census age shall take up their residence within the 
city, others remove therefrom, and others change residence from 
one section to another, the facts relating to such changes from day 
to day are to be reported to the bureau by a person or persons 
appointed and paid for this very service. As these facts are reported 
from the field from day to day and properly tabulated, classified 
and filed in the bureau, the census will have become actually and 
completely amended up to date. If attendance officers formerly 
employed are fully occupied, then an additional officer or officers or 
special enumerators are to be appointed to do field census work. 

The census has been amended from day to day and thus kept 
up to date with remarkable efficiency and completeness since IQ09 
in the great city of New York, having a population of above five 
million people, or over one-half of the entire State's population : 
therefore the task of amending the census in the other cities of the 
State, particularly in cities of the second and third class, involves 
a relatively small amount of work and expense. In a word, the 



census is to be amended by the same processes under which the 
original survey was made. 

How to keep the census up to date without costing the city some 
additional money may be the real question, as indicated by letters 
of inquiry received at the Department. In answer, let it be said 
that how to get something done that is necessary to be done, and 
that is really worth the doing, without costing somebody something, 
is a question that we can not answer. Obviously some additional 
expenditure of money will necessarily be called for in proper admin- 
istration of the census act. 

It is assumed that in preparation for the' taking of the original 
city-wide survey a pretty accurate map of each city was made ; and 
by aid of such map territory was divided into geographical units. 
The amending of the census from day to day should take place 
within each geographical unit, by attendance officers or special enu- 
merators, and the amount of help necessary to do the work will 
depend upon the size of the city. The plan suggested has worked 
satisfactorily in the city of New Yor'k since 1909. It will be more 
satisfactory in less populous cities, and at relatively small expense. 

The board of education, finance committee, mayor and others 
may not without help and enlightenment readily understand the need 
of expending necessary money to keep the census up to date. It 
therefore devolves upon the superintendent of schools to enlighten 
these public officials on that question, and further bring to the atten- 
tion of all concerned the beneficent and useful purposes sought to be 
accomplished under this new census scheme ; and, when there shall 
have been established an intelligent understanding of the work that 
is being carried forward, there will be no trouble thereafter in secur- 
ing financial aid and hearty cooperation, and our confidence in all 
this is assured as we turn again to the city of New York. The board 
of education, finance committee, mayor and intelligent, enlightened 
taxpayers of that great municipality cheerfully from year to year 
provide necessary funds with which to administer the census, child 
welfare and compulsory education bureau of that city. The bureau 
therein long since demonstrated the fact that it is of tremendous 
aid in the administration of the city school system, and of material 
assistance to other departments of the city government. The tenta- 
tive bureaus now started in the smaller cities will be able to give an 
equally good account of themselves, if they are organized and admin- 
istered in an intelligent and businesslike way. 

Let there be a campaign of enlightenment in each city concerning 
the benefits that are bound to accrue from a proper administration 



of the census act, and local authorities charged with the work will 
surely not lack the cheerful, effective cooperation of all concerned. 
Taxpayers are generous toward the schools, when they are made to 
realize the actual needs of children along educational and child wel- 
fare lines ; for no other purpose do people of the State more gener- 
ously expend their money. Above one hundred million dollars was 
expended last year within the State to maintain its public school 
system. ' 

It is a fact — though not yet appreciated within the group of 
cities afifected by the act — that educational authorities are not 
only legally responsible for the education of children, while physi- 
cally present in the schools, but equally responsible for these children 
within their home environments, when home conditions are such as 
to nullify the work of the school as regards such children. The 
census bureau in proper working condition will furnish quite com- 
plete and necessary information to such authorities as regards the 
child, his movements, his physical and social condition within the 
home environment. It is a fact that thousands of children fail to 
receive from the schools what they are entitled to, simply because 
they are not adequately and necessarily protected while apart from 
the schools. To assume that the school in its limited daily session 
of five hours may do all that is necessary to be done for a child 
along educational and social uplift lines, is erroneous. Much that 
the school does not do and can not do is necessary to be done, and 
will be done by various agencies, when full information concerning 
the home condition of the child has become a matter of record within 
these bureaus. If anyone is in doubt about this, let him consult the 
bureaus maintained in the city of New York and in Rochester. 

What we have said here, and what we are about to say as to how 
the census is to be amended, is at the best only suggestive. Rules of 
procedure in the process of amendment of census, organization and 
administration of bureaus will vary, according to the size of the 
cities and make-up of population. The following suggestions, how- 
ever, may be helpful to all cities. 

I The officer or enumerator in the field under the amendment 
process should keep in close touch with the mail carrier and the 
patrolman within the unit, since such officers will advise as to new 
persons coming into the unit and others departing therefrom. 

2a As a check and proving-up process, annually after the opening 
of the schools each principal should file at the census bureau a 
duplicate copy of his registers, and such registers within the bureau 



17 

should be checked up against the bureau's files ; and, as new persons 
from time to time register at the schools, they should also be 
reported to the bureau. All withdrawals from the school, whether 
such persons remove from the city or change from one school dis- 
trict to another within the same city, should be reported. If the 
change from one school to another involves change of address, 
changed address should also be reported to the bureau. 

b When the principal issues school record certificates, a record 
of such issuance should be filed at the bureau. 

c A record should be transcribed from the health department to 
the bureau of all working certificates issued, and the bureau should 
be informed concerning a child while working under said certificate, 
recording changes from one employment to another, or discontinu- 
ance of employment. 

3 A duplicate copy of all birth records should be transcribed from 
the office of vital statistics to the census bureau, as such record will 
enable school authorities to determine when the child becomes of 
legal school age (5 years old) ; compulsory school age (7 years old) ; 
qualified for working papers as tO' age ( 14 to 16 years old) ; qualified 
for legal release from school under the compulsory education act 
(16 years old). 

The census bureau should be made a clearing house for the ages 
of all persons under 18 and the bureau may further serve the indi- 
vidual as to age information throughout adult life, wherever he may 
go, and in whatever occupation or profession engage. In the judicial 
settlement of estates, in litigated claims and in many other respects, 
accurate evidence of age is often found to be of vital concern. 

LEGAL RESPONSIBILITY OF COMMISSIONER OF 
EDUCATION 

The Commissioner of Education, under oath, is charged with the 
administration of the census law and, in order to be advised of the 
extent to which the act is being carried forward in cities of the firs': 
class, particularly as regards the amending of the census from day 
to day, which is the basic feature of the law, a report is transmitted 
to the Department at the close of each month, showing the opera- 
tions of the bureau in the matter of amending the census during said 
month. Similar monthly reports will be required from each city of 
the second and third class. Monthly reports from the larger cities 
have been found by the Department to be exceedingly illuminating. 
Copy of sample report from the city of Rochester for the month of 
June 19 1 8 follows: 



i8 • 

SCHOOL CENSUS BOARD 

Rochester, N. Y., July 8th, igi8 
State Department of Education, Albany, N. Y. 

Gentlemen: I inclose herewith a report of the work of this office for the 
month of June 191 8. 

The reports received and services rendered in detail are as follows: 

DATA FROM THE FIELD 

Territory 

Units A B C D E Total 

I loi 23 30 17 22 193 

2 260 57 34 40 91 482 

3 90 38 35 12 36 211 

4 282 32 76 127 106 623 

5 209 43 35 87 25 399 

6 49 16 13 21 8 107 



Total 991 209 223 304 288 2015 

A Changes of address within the city. 

B Children moving out of the city. 

C Children moving into the city. 

D Children becoming 4 years of age. 

E Special reports or new records which could not be classified under C or D. 

Reports from public schools 2083 

Reports from health bureau (number of working certificates issued and 

number of applications for same refused) 1 1 87 

Total reports received 5285 

SERVICES RENDERED 

Information furnished as to 

Age 276 

Address 12 

Work certificates 7^3 

Miscellaneous 16 

1017 

Violations of compulsory education law discovered 13 

Violations of child labor law discovered 13 



Total services rendered 1043 

Respectfully submitted 

WILLIAM E. BLACKWOOD 

Secretary 

The foregoing report shows how census information helps enforce 
the compulsory education and child labor laws. The report is easily 
compiled at the close of the month, if tabulated daily within the 
bureau, and is a means of furnishing full data as to the operation 
of the census, compulsory education and child labor laws. 

CHILD WELFARE 

From the data secured in city-wide censuses basic information 
necessary to the organization of child welfare work was obtained. 



19 

The necessity for the latter is noted by even a casual examination of 
certain age groups in summarized report from cities, found else- 
where in this bulletin. Attention is called to the fact that the sur- 
vey made in fifty-four cities disclosed children 7 to 18 years of age 
retarded or below grade for children of their age. These figures 
represent children mentally normal in distinction from the figures 
representing another group in the summarized report — subnormal 
or feeble-minded. The larger group, 53,776, mentally normal, were 
retarded by causes in the main correctable. 

The big problem in connection with retardation is to discover 
the causes and apply the necessary remedy. Teachers, particularly 
in public schools, may not be held to any marked degree responsible 
for this retardation. The same is true of those, generally speaking, 
in parochial and private English-speaking schools. Teachers, how- 
ever, and others responsible for the maintenance of bilingual 
parochial and private schools, may truthfully be held measurably 
accountable for retardation of their pupils, since the instruction in 
many such schools is extremely inefficient and faulty. Furthermore 
within the home environment of retarded children may be discovered 
in many cases evident causes of retardation at the schools, both 
public and private, and these causes are often unknown to those 
officially responsible for the proper schooling of children. Ask 
the average superintendent for specific information concerning the 
individual children retarded one, two, three or four years and such 
information is not furnished except in a few instances. Neither 
can the teacher, generally speaking, throw any light upon the real 
causes of retardation. 

As indicated by returns, approximately 23 per cent of the educa- 
tional product turned out in cities covered by the survey is below 
grade and, as above noted, almost nothing is known by school and 
municipal authorities concerning the cause or causes. No individual, 
business concern or corporation in any one of these cities could hope 
to succeed if 23 per cent of the output of his plant was below grade. 
They look for the trouble at once and apply the necessary remedy. 
Why should not the local authorities of each city, responsible for 
the schooling of children, adopt and put in force similar sound 
methods ? 

In every case of serious retardation all the facts should be 
recorded on special blanks to be kept in the school the pupil attends. 
From this data obtained by the combined eflforts of teacher, school 
nurse, school physician and psychological examiner a fair idea of 



20 

the causes of the trouble should be derived. This information 
should then be filed at the census bureau where it is easily access- 
ible to child welfare workers in general. 

Failure of certain courts to do their duty in properly punishing 
parents and those in parental relation who knowingly, intentionally 
and with impunity violate school attendance laws, indirectly deprives 
the child of his inherent right to adequate schooling. A city super- 
intendent of schools writes us : 

In all the years (more than fifteen) I have been in charge of these schools, 
though we have annually brought before the recorder parents guilty of violating 
child labor and school attendance laws — old, flagrant offenders — not in a 
single instance has a fine been imposed upon these lawbreakers. 

This recorder, bear in mind, took the usual constitutional oath 
of office after each election, as he entered anew upon the perform- 
ance of official duty. 

Another superintendent in a leading city, utterly discouraged, 
wrote the Education Department very recently : 

We have come to the conclusion that it is practically impossible to get Judge 

to act in these cases. We have tried to do everything we could under 

the conditions to secure his support but one obstacle after another is thrown in 
our way. 

Much additional testimony of the same character has been fur- 
nished by other superintendents, school boards, teachers, attendance 
officers and others. 

President Wilson in a recent statement concerning the necessity 
of providing adequate elementary education for all children declared 
" the children of the country are the country's greatest asset," and 
another distinguished American declared " children of the United 
States, you are the hope of the world in the tomorrow after the 
war ! " To deny, therefore, to children adequate aid to enable them 
to receive the full benefits of elementary education, is little less 
than a crime against " the country's greatest asset " and " the hope 
of the world." 

In view of the enormous expenditure of the State in the mainte- 
nance of her public school system — above one hundred million 
dollars annually — and the added expenditure of private funds for 
the same worthy purpose, it is extremely discouraging and equally 
alarming to find so large an army of children leaving the schools 
with only a fragment of that education which is the birthright of 
every child within a free state. When we put into a single group 
the army of retarded children, the illiterate, and the non-English- 
speaking, and the 88,000 who annually leave the schools on workin.o- 



21 

certificates (a certificate which may be granted upon the attainment 
of only sixth grade work), we reahze the extent to which we are 
failing to conserve the inherent right of children to education. 

In some of our cities, child welfare agencies have accomplished 
most commendable and far-reaching results for the child and the 
home. 

Equally well-organized and conducted work within the schools 
and by public officials without, with the aid of a properly adminis- 
tered census bureau, will be productive of even greater community 
service. 



22 



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24 



CENSUS OF 
DISTRIBUTION 



CITIES 



Albany 

Amsterdam 

Auburn 

Batavia 

Beacon 

Binghamton 

Canandaigua 

Cohoes 

Corning 

Cortland 

Dunkirk 

Elmira 

Fulton 

Geneva 

Glens Falls 

Gloversville 

Homell 

Hudson 

Ithaca 

Jamestown 

Johnstown 

Kingston 

Lackawanna 

Little Falls 

Lockport 

Mechanicville . . . . 

Middletown 

Mount Vernon . . . 
New Rochelle . . . . 

Newburgh 

Niagara Falls 

North Tonawanda 

Norwich 

Ogdensburg 

Olean 

Oneida 

Oneonta 

Oswego 

Plattsburg 

Port Jervis 

Poughkeepsie 

Rensselaer 

Rome 

Salamanca 

Saratoga Springs . . 

Schenectady 

Syracuse 

Tonawanda 

Troy 

Utica 

Watertown 

Watervliet 

White Plains 

Totals 



Total 
under 

4 
years 



000' 

492 
334 
6ii 
763 
426 
412 
084 
062 
S03 
961 
771 
134 
Soo 
357 
20s 
650 
S68 
039 
342 
728 
S13 
377 
639 
678 
691 
212 
901 
380 
610 
557 
355 
77 
914 
734 
714 
425 
077 
382 
553 

521 

700 
800' 
626 
409 

425 

166* 

279 

002 

742 

204 

943 

649 



88 197 



Total over 

4 and 

under 18 

years 



19 507 

6 494 

7 586 
3 123 

2 494 
II 307 

1 532 
5 0S3 

3 372 

2 393 
5 460 

8 033 
2 538 
2 8S3 

2 579 

4 019 

3 046 

2 394 

3 326 

7 813 
2 126 

5 741 

4 919 

2 230 

3 8S3 

2 191 

3 106 

8 852 
7 938 

6 752 
10 808 

3 855 
I 482 



3 232 

4 948 

1 906 

2 004 

5 321 
2 52? 

2 009 

6 833 

1 729 

3 415 

2 206 
2 305 

20 937 
32 ISO 

2 116 
13 363 
18 918 

6 061 

3 442 

4 308 



308 SOS 



Total under 
18 years 



25 S07 
7 986 
9 920 
3 734 

3 257 
IS 733 

1 944 

6 137 

4 434 

2 896 

7 421 
10 804 

3 672 

3 353 

2 936 

4 224 

3 696 
2 962 

4 365 
9 ISS 
2 854 
7 2S4 
7 296 
2 869 

4 531 

2 882 

3 318 
10 753 

9 318 
7 362 

15 36s 

5 210 

1 559 

4 146 

5 682 

2 620 
2 429 

6 398 
2 909 
2 562 
9 354 
2 429 
4 21S 
2 832 
2 714 

27 362 

45 316 

2 395 

16 365 
2S 660 

7 26s 
4 385 
4 957 



396 702 



* Estimated. 

Note: Figures for Lansingburg included with Troy. 

Figures for Corning — Districts 9 and 13 combined. 



CITIES, 1917 
BY AGE PERIODS 



25 



Persons 4 to 18 Years of Age 



Native 
born 



Foreign 
born 



foreign 
born 



mentally incompetent 



Idiot 



Sub- 
normal 



Total 



Per 
cent 



physically incompetent 



Cripple 



Deaf 



Dumb 



Blind 



18 878 

6 204 

7 199 
2 999 
2 395 

10 822 
I 491 
4 884 
3 



241 
2 347 
S 23s 
7 813 
2 409 
2 378 

2 540 

3 669 
2 992 

2 268 

3 194 

7 282 

1 980 

5 660 

4 478 

2 043 

3 727 

2 051 

3 041 

8 343 

7 694 

6 S44 

8 403 
3 596 
I 442 

3 140 

4 796 

1 891 

2 002 

5 138 

2 446 
I 954 

6 63s 

1 704 

3 231 

2 169 
2 252 

19 528 
31 102 

2 000 
12 960 
17 466 

5 189 

3 368 

4 169 



629 
290 
387 
124 

99 
485 

41 
169 
131 

46 

225 
220 
129 

475 

39 
350 

54 
126 
132 
531 
146 

81 
441 
187 
126 
140 

65 
509 
244 
208 
405 
259 

40 

92 
152 

15 

2 

183 



25 

184 

37 

53 

409 

048 

116 

403 

452 

872 

74 

139 



3-2 

4.46 

5. II 

3.96 

3-9 

4.2 

2.6 

3.3 

3.8 

1. 91 

4. 12 
2.7 
5.08 

16.6 
I. 51 
8.7 
1.77 

5. 26 
3.9 
6.7 
6.86 
1. 41 
8.96 
8.38 
3-27 
6.38 
2.09 
5-75 
307 
3 08 

. 22 
6.71 
2.69 
2.84 
307 
.78 
.09 
3-43 

3-20 

2.73 
2.89 
1.44 
5.38 
1 .67 
2,29 
6.7 

3-2 

5.48 
301 
7.6 
14.38 
2.14 
3.22 



292 382 16 123 



39 

7 

152 

17 

3 
15 



39 

9 

155 

22 

4 
15 



• 14 
.13 

! .04 

• 7 
.16 
.13 
.06 
.01 
.53 
.58 
.05 

• 31 

• 23 
.07 
.69 
.24 



.58 
.37 
.01 

■ 37 

• OS 

• 53 
.06 

• 14 
.73 
.79 
.01 

■ 03 
.19 
.16 
.28 

• 29 
.58 



.08 
.19 
.37 
.64 
.05 

1 .02 
. II 

1. 16 



26 

21 

9 

19 

3 

56 

I 

4 

13 

15 

16 

23 

12 

6 

16 

6 

9 

7 

14 



31 
13 

5 

26 

6 

5 

27 

6 

4 

5 

6 

14 

2 

49 

3 

2 

3 

4 

56 

99 

15 

25 

14 

37 

3 

9 



6 
3 

4 

7 

2 

45 



5 
49 

7 
16 

4 

I 
36 



27 
36 



400 



26 



CITIES 



Persons 4 to i8 Years of 
Age (concluded) 



PHYSICALLY INCOMPETENT 

(concluded) 



Tuber- 
cular 
etc. 



Total 



Per cent 



7 TO 16 



Total 



Illegally 
absent 



Albany 

Amsterdam 

Auburn 

Batavia 

Beacon 

Binghamton 

Canandaigua 

Cohoes 

Coming 

Cortland 

Dunkirk 

Elmira 

Fulton 

Geneva 

Glens Falls 

Gloversville 

Hornell 

Hudson 

Ithaca 

Jamestown 

Johnstown 

Kingston 

Lackawanna 

Little Falls 

Lockport 

Mechanicville 

Middletown 

Mount Vernon 

New Rochelle 

Newburgh 

Niagara Falls 

North Tonawanda 

Norwich 

Ogdensburg 

Olean 

Oneida 

Oneonta 

Oswego 

Plattsburg 

Port Jervis. 

Poughkeepsie 

Rensselaer 

Rome 

Salamanca 

Saratoga Springs 

Schenectady 

Syracuse 

Tonawanda f . 

Troy 

Utica 

Watertown 

Watervliet 

White Plains 



188 
95 



102 
86 
84 



64 
31 
169 
21 
26 
69 
12 
19 
19 
92 
26 
24 
33 
32 
21 
39 
3 



25 

23 

I3S 

4 

6 

8 

7 

293 

271 

18 

142 

107 

IS8 

25 



.32 
.64 

• 47 
1.6 

.48 

1.03 
.52 
.23 

2.4 

2.6 
.56 

2. 1 
.82 
.91 

2.6 
.29 
.62 
.79 

2.7 

■ 33 
1. 12 

• 57 
.65 
•94 

1. 01 
.13 
.06 
.55 
.26 
■44 

4-07 
.90 

• 33 
1.23 

.52 

• 46 

• 54 
.18 
.98 

1. 14 
1.97 

• 23 

• 17 

• 36 

■ 30 
I 39 

.84 
.85 

1 .06 
.56 

2.6 
.72 
.48 



13 943 

4 36s 

5 040 

2 122 
I 584 

7 207 

1 048 

3 107 

2 255 
I 680 

3 545 
5 283 

1 710 

2 015 

1 778 

2 895 
2 123 

1 539 

2 196 
5 148 

1 376 

3 812 

2 872 

1 509 

2 612 

1 419 

2 013 
5 860 

5 316 

4 413 

6 627 
2 289 

1 006 

2 163 

3 257 
I 212 

724 

3 392 
I 680 
I 307 

4 607 

1 196 

2 62s 
I 402 
I 575 

13 575 
21 148 

1 342 

8 375 
4 212 

3 984 

2 178 
2 811 



SO 
6 

7 

21 

4 
89 

2 
44 
24 



112 
9 



5 

t 

3 

17 

10 

3 

61 



74 

6 

39 

16 

29 

105 

447 



197 
181 
66 



Totals. 



2 650 



194 472 



I 803 



t Lackawanna schools not in session at time of survey. 
Note: Figures for Lansingburg included with Troy. 

Figures for Corning — Districts 9 and 13 combined. 



27 



Years 



Required 
to attend 



14 TO 16 Years 



Total 



Absent 

on 
work- 
ing 
papers 



% 

absent 
on 

work- 
ing 

papers 



7 TO 18 Years 



Total 



Re- 
tarded 



% 
re- 
tarded 



Unable 

to 

read 

and 

write 

English 



10 to iJ 
years 
illit- 
erate 



13 911 
4 04s 

4 82s 
2 091 
I 530 

7 OSS 

1 036 

2 974 

2 209 
I 648 

3 460 

5 18S 
I 683 
I 924 

1 761 

2 818 

2 010 
I soo 

,2 160 

4 977 

1 302 

3 684 

2 771 

1 440 

2 577 
I 401 

1 995 

5 778 
5 261 

4 392 

5 832 

2 230 
975 

2 136 

3 158 
I 171 

702 

3 254 
I 6ss 
I 283 

4 477 

1 168 

2 567 
I 358 
I 546 

13 333 
20 402 

1 276 

8 229 

3 406 
3 897 

2 131 
2 791 

188 380 



2 610 
734 
780 
368 
308 

I 432 
202 
646 
490 
349 
660 

I 053 
288 
327 
359 
496 
383 
302 
424 
992 
251 
823 
451 
267 
580 
278 
442 

1 112 
937 
876 

r 091 
396 

215 

410 
594 
242 
257 
634 
374 
254 
838 
245 
475 
263 
320 

2 531 
4 102 

224 

1 851 

2 215 
512 
427 
493 

38 183 



32 

320 

215 
31 
54 

152 
12 

133 
46 
32 
85 
98 
27 
91 
17 
77 

113 
39 
36 

171 
74 

128 

lOI 

69 
35 
18 
18 
82 
55 
21 

795 
59 
31 
27 
99 
41 
22 

138 
25 
24 

130 
28 
58 
44 
29 

242 

746 
66 

146 

806 
87 
47 
20 

6 092 



9 
9 

12. 

9-3 

9-4 
27-8 

4.8 
15-5 
29. 
12. 

8.4 
17. 2 
29. 
14. 



407 

7.37 

5.86 

2.39 

72.86 

14-89 

14.41 

6.58 

16.66 

16.94 

8.56 

21 .76 

6.68 

9.44 

15-51 

II .42 

12.21 

16.73 

9.06 

9-5 

18. 1 

29-46 

7-8 
36-3 
16.99 
II . 
4 -OS 



15 890 

4 946 

5 686 

2 443 
I 929 
8 478 

1 216 

3 720 

2 6S9 
2 001 

4 089 

6 275 

1 941 

2 175 

2 048 

3 241 
2 440 



64s 
074 
601 
594 
314 
757 
028 
617 
411 
772 



338 
703 
721 
181 
539 
744 
473 
958 
083 



I 578 
5 08s 

1 368 

2 769 
I 644 
I 839 

IS 812 
24 795 

1 601 
ID 227 
14 080 

4 855 

2 676 

3 240 

236 069 



2 400 
941 

2 270 
498 
514 

2 546 
116 
620 
450 
249 

I 391 

I 506 
276 
275 
321 

I 167 
26s 
299 
458 
826 
382 

I 348 
927 
188 
462 
457 
488 
592 

1 077 

2 003 
68s 
213 
545 
236 
866 
262 
386 

1 008 
235 
399 
762 
461 
980 
228 
22s 

2 932 
7 843 

i8s 
2 048 
5 178 
I 260 

486 
I 041 

S3 776 



IS- 1 

19.02 

39.9 

20.3 

26.6 

30.03 

9.5 
16.6 
16.9 
12.4 
34- 
24. 
14. 2 
12.6 
IS. 6 
36. 
10,8 
16. 5 
17.3 
13-5 
23-8 
29-3 
27-9 
10.7 
15-2 
28.2 
20. 2 

8.7 
18. 
37-5 

8.8 

7.8 
46.1 

9.2 
23-1 
17-7 
40. 2 
22. 
II. 8 
25.2 
14.9 
33-6 
35-3 
13-8 
12.2 
18.5 
31-6 
II-5 
20.02 
36.7 
25.9 
18. 1 
32.1 



7 
17 
23 
16 
IS 
147 



I OS 
4 



6 

14 
12 
16 
8 
13 
66s 



SO 
6 

117 



I 586 



64 



LIBRARY OF CONGRESS 




